Arizona, California and Nevada on Monday proposed a plan to significantly reduce their water use from the drought-stricken Colorado River over the next three years, a potential breakthrough in a year-long stalemate that pitted Western states against one another.
The plan would conserve an additional 3 million acre-feet of water through 2026, when current guidelines for how the river is shared expire. About half the cuts would come by the end of 2024. That's less than what federal officials said last year would be needed to stave off crisis in the river but still marks a notable step in long and difficult negotiations between the three states.
The 1,450-mile river provides water to 40 million people in seven U.S. states, parts of Mexico and more than two dozen Native American tribes. It produces hydropower and supplies water to farms that grow most of the nation's winter vegetables.
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In exchange for temporarily using less water, cities, irrigation districts and Native American tribes in the three states will receive federal funding, though officials did not say how much they expected to receive.
Though adoption of the plan isn't certain, U.S. Bureau of Reclamation Commissioner Camille Touton called it an “important step forward.” She said the bureau will pull back its proposal from last month that could have resulted in sidestepping the existing water priority system to force cuts while it analyzes the three-state plan. The bureau's earlier proposal, if adopted, could have led to a messy legal battle.
"At least they’re still talking. But money helps you keep talking,” said Terry Fulp, former regional director of the U.S. Bureau of Reclamation’s Lower Colorado Basin region. He noted the agreement is a “short-term, three-year deal” and that because the Upper Basin states of Colorado, New Mexico, Utah, and Wyoming didn’t face immediate cuts, they were not part of the pact.
“The goal was so the government didn’t have to issue a mandate” based on priority rights, he said. “It looks like that’s what what’s going to happen.”
Photos: The receding waters of Lake Powell, Glen Canyon National Recreation Area
Tom Wright hikes past the beached marker for Willow Canyon where it joins with the Escalante River, Glen Canyon National Recreation Area, Utah.
A big horn sheep stands with the moon as a backdrop, looking over Fiftymile Creek, Glen Canyon National Recreation Area, Utah.
Tom Wright walks through the shaft of light peeking through the narrow openings of the formation called the Subway in Fiftymile Creek, accessible since the waters of Lake Powell have fallen dramatically.
A narrow sliver of sky is visible overhead through the narrow opening of the formation called the Subway, Fiftymile Creek, accessible since the waters of Lake Powell have fallen dramatically.
The dark streaking, called Desert Varnish, is from the seepage of oxidation in the rocks, and is beginning to erase the "bathtub ring", the lighter colored marks left by the waters of Lake Powell on canyon walls, Fiftymile Creek, Glen Canyon National Recreation Area, Utah.
The remains of a small boat, underwater for years, reemerges due to receding water levels of Lake Powell in the Glen Canyon National Recreation Area, Utah.
Frank Colver makes his way over the dried and cracking silt left where the Escalante River joins Lake Powell, Glen Canyon National Recreation Area, Utah. The receding water of the lake has the river cutting through the decades of accumulated silt to form a delta where it meets the lake.
A warning buoy sits high and dry far from the end of the closed public boat ramp at Bullfrog Bay, Glen Canyon National Recreation Area.
A line of tires that were once breakwaters at Bullfrog Bay Marina are now stranded on the rocky landscape high above the current water levels at the Glen Canyon National Recreation Area, Utah.
A pedestrian ramp lies well above the water levels at Bullfrog Bay in the Glen Canyon National Recreation Area, Utah.
A stranded wakeless zone buoy sits on the cracking silt outside the new shores of the Bullfrog Bay Marina, Glen Canyon National Recreation Area, Utah.
The end of the ferry ramp ends well short of the new water levels of Bullfrog Bay on the Glen Canyon National Recreation Area, Utah.
An early riser watches the sun come over the low waters of Bullfrog Bay Marina, Glen Canyon National Recreation Aria, Utah. The lighter colored areas on the canyon wall mark previous water levels.
A group of river rafters drift west on the current of the San Juan River outside Mexican Hat. The San Juan feeds Lake Powell.
The tops of a few cottonwood trees begin to poke out of shrunken water of Lake Powell, Fiftymile Creek, Glen Canyon National Recreation Area, Utah.
The remaining large water craft and house boats are crowded together in one of the last areas of water deep enough to support them at Wahweap Mariana, Glen Canyon National Recreation Area, Page, Ariz.
The waters of Lake Powell are twenty to thirty feet below the end of the public boat ramp at Wahweap Mariana, Glen Canyon National Recreation Area, Page, Ariz. Personal non-powered craft still use the ramp to unload, but must be carried up and down the banks to reach the water.
A view north from the Wahweap Marina Overlook show the shrunken waters around the marina in Glen Canyon National Recreation Area, Page, Ariz.
The underside of Gregory Natural Bridge, passable for the first time in almost 50 years, over the Fiftymile Creek, Glen Canyon National Recreation Area, Utah.
The moon rises over Gregory Natural Bridge, passable for the first time in almost 50 years, over the Fiftymile Creek, Glen Canyon National Recreation Area, Utah.
The exposed penstocks (intakes to the power turbines) on Glen Canyon Dam in the Glen Canyon National Recreation Area, Page, Ariz. The water level is at its lowest since 1967, when the dam was still being initially filled.
A group of sightseers get a look at the Glen Canyon Dam during a boat tour of Lake Powell, Glen Canyon National Recreation Area, Page, Ariz.
A small fishing boat ties up on the breakwater just outside the intakes for the Glen Canyon Dam, Glen Canyon National Recreation Area, Page, Ariz.. The penstocks (water intakes to the power turbines) are revealed for the first time since 1967 when the Lake Powell was being filled.
Swimmers and bathers use the jagged shores of the newly exposed banks of Lake Powell just above the Glen Canyon Dam, Glen Canyon National Recreation Area, Page, Ariz.
The Glen Canyon Bridge lies in front of electrical towers with feeder lines rising from the hydroelectric plant in the Glen Canyon Dam, Page, Ariz.
Glen Canyon Dam from Glen Canyon Bridge, Page, Ariz.
Small power boats on the Colorado River head upstream just below the Glen Canyon Dam, Page, Ariz.
Wade Quilter walks through the remains of cottonwood and Russian olive trees washed down and joined with silt to form a natural dam where Willow Canyon joins with the Escalante River, Glen Canyon National Recreation Area, Utah,
The remains of a big mouth bass lay in the silt just above where the Escalante River joins Lake Powell, Glen Canyon National Recreation Area, Utah.
The formation known as The Cathedral in the Desert on Clear Creek, Glen Canyon National Recreation Area, Utah. The re-emergence of the formation is drawing sightseers after being submerged for some 50 years.
Tom Wright feels the water oozing from the rocks in the formation known as Cathedral in the Desert on Clear Creek, Glen Canyon National Recreation Area, Utah. The re-emergence of the formation is drawing sightseers after being submerged for some 50 years.
Frank Colver takes a quiet moment and plays a handmade flute near the waterfall in the formation known as Cathedral in the Desert on Clear Creek, Glen Canyon National Recreation Area, Utah. The re-emergence of the formation is drawing sightseers after being submerged for some 50 years.
Jake Quilter walks down the newly cut banks of Clear Creek just outside Cathedral in the Desert, Glen Canyon National Recreation Area Utah. The sand is silt left behind by the receding waters of Lake Powell.
The tops of cottonwood trees that used to be under a hundred feet of water in Lake Powell are visible again in Clear Creek, Glen Canyon National Recreation Area, Utah. The deep water preserved the remains of the trees.
Boaters have to zig-zag through the rocks emerging due to receding waters of Lake Powell, Glen Canyon National Recreation Area, Page, Ariz.
Several images combined for a panoramic view of the Colorado River where it runs through the what once was Hite Marina in the Glen Canyon National Recreation Area, Utah.
A couple of sightseers take in the view from Hite Overlook over the Colorado River and the closed Hite Marina, Glen Canyon National Recreation Area, Utah.
Lone Rock, jutting out of the dry bed, would usually be surrounded by Lake Powell but is now well clear of the water, Glen Canyon National Recreation Area, Utah.
Tires that used to hold the lines well below the surface of Lake Powell are suspended over the water at Antelope Point Marina, Ariz.
Sightseers twenty or thirty feet above get photos of the low water levels of Lake Powell from the public boat ramp at Antelope Point Marina, Ariz.
The pedestrian access ramp ends abruptly twenty feet over the new Lake Powell surface at Antelope Point Marina, Ariz.
The entrance to the pedestrian access ramp of the Antelope Point Marina is taped off after being cutoff from the docks due to receding waters of Lake Powell.
The three Lower Basin states are entitled to 7.5 million acre-feet of water altogether from the river. An acre-foot of water is roughly enough to serve two to three U.S. households annually.
California gets the most, based on a century-old water rights priority system. Most of that goes to farmers in the Imperial Irrigation District, though some also goes to smaller water districts and cities across Southern California. Arizona and Nevada have already faced cuts in recent years as key reservoir levels dropped based on prior agreements. But California has been spared.
Under the new proposal, California would give up about 1.6 million acre-feet of water through 2026 — a little more than half of the total. That's roughly the same amount the state first offered six months ago. It wasn't clear why the other states agreed to a deal now when California didn't offer further cuts. Leaders in Arizona and Nevada didn't immediately say how they'd divide the other 1.4 million acre feet.
Tom Buschatzke, director of the Arizona Department of Water Resources, stressed that the announcement is not a final deal.
“We agreed to a proposal. This is not an agreement,” Buschatzke said during a conference call with reporters. Buschatzke said the proposal still needs analysis and approval from the federal government, which will determine how much funding will be allocated for entities that give up water.
Arizona Gov. Katie Hobbs said the deal provided a way to “build our reservoirs back up in the near-term,” but added that work remained to address long-term effects of climate change and overallocation. Govs. Gavin Newsom of California and Joe Lombardo of Nevada also praised the agreement.
Longtime Arizona Daily Star reporter Tony Davis talks about the Colorado River system being "on the edge of collapse" and what it could mean for Arizona.
The Colorado River has been in crisis for years due to a multi-decade drought in the West intensified by climate change, rising demand and overuse. Water levels at key reservoirs dipped to unprecedented lows, though they have rebounded somewhat thanks to heavy precipitation this winter.
In recent years the federal government has cut some water allocations and offered billions of dollars to pay farmers, cities and others to cut back. But key water officials didn't see those efforts as enough to prevent the system from collapsing.
Last summer, the U.S. Bureau of Reclamation called for the seven basin states to figure out how to cut their collective use of Colorado River water by about 2 to 4 million acre feet in 2023 alone — roughly 15% to 30% of their annual use — but states blew past that deadline and an agreement remained elusive for several more months.
In April, the U.S. Bureau of Reclamation released a plan that considered two ways to force cuts for Arizona, Nevada and California. One contemplated using a decades-old water priority system that would have benefited California and some Native American tribes with senior water rights. The other would have been a percentage cut across the board.
Michael Cohen, a senior researcher at the Pacific Institute focused on the Colorado River, called the amount of cuts the three states have proposed a “huge, huge lift” and a significant step forward.
“It does buy us a little additional time,” he said. But if more dry years are ahead, “this agreement will not solve that problem.”
Behind the series: The Star's longtime environmental reporter Tony Davis shares what inspired him to write the investigative series "Colorado River reckoning: Not enough water."
Three states agree on plan to save Colorado River water
